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Recent Trends in Plant Quarantine Policy in Australia and New Zealand and Their Implications for Forestry

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Recent Trends in Plant Quarantine Policy in Australia and New Zealand and Their Implications for Forestry 308 RECENT TRENDS IN PLANT QUARANTINE POLICY IN AUSTRALIA AND NEW ZEALAND AND THEIR IMPLICATIONS FOR FORESTRY F.R. WYLIE Biology Section, Department of Forestry, Indooroopilly, Queensland 4068, Australia (Received for publication 9 August 1989; revision 24 October 1989) ABSTRACT Reviews have recently been conducted independently by Australia and New Zealand into various aspects of their plant quarantine policy and practice. Quarantine policy trends in the two countries are similar, being shaped largely by the same pressures and demands, both external (e.g., international moves towards trade liberalisation) and internal (e.g., financial stringencies). A key issue that has emerged from these reviews, and the most controversial, is the assessment of "acceptable risk" by means of bio-economic analysis. Such an approach must be extremely conservative when considering the interests of industries such as forestry because of the disproportionate impact the introduction of exotic pests and pathogens may have on forests and forest products, the special difficulties of early detection and control of such organisms, and the paucity of data on which to base risk assessment. Other issues of relevance to forestry are the establishment of databases on pests and diseases, pre-clearance, area freedom, privatisation of quarantine premises, "multiskilling" for border inspections, community consultation in policy formulation, and the promotion of public awareness of quarantine. Keywords: quarantine; forest policy; insect pests; fungal pathogens INTRODUCTION Over the past decade in both Australia and New Zealand, there has been a number of enquiries and reports into various aspects of quarantine policy and practice, leading to some important changes, and suggestions for change, in existing systems. These reviews have sought to address pressures and demands that the quarantine system is expected to face in the future. These include increases in the volume of imports and passenger traffic, increasingly severe budgetary constraints, the increasing international attention being given to non-tariff trade barriers, technological advances, and changing attitudes to the use of chemical pesticides for control or eradication New Zealand Journal of Forestry Science 19(2/3): 308-17 (1989) Wylie — Plant quarantine policy in Australia and New Zealand 309 measures. It has been generally recognised that no quarantine system can guarantee total exclusion of pests and diseases while there is trade, movement of people, natural movement of pests and diseases, and intentional or unintentional breaking of the law (Quarantine Review Committee 1988; New Zealand Ministry for the Environment 1988). What is being sought by each country is a system of risk management which will allow their quarantine system to be most effective within these constraints. Several of the findings and recommendations of the reviews which have particular relevance for forestry interests are discussed in this paper. BACKGROUND The term "quarantine" is derived from the Latin quadraginta meaning forty. As outlined by Mathys & Baker (1980), it originally applied to the period of detention for ships arriving from countries where human diseases such as bubonic plague and cholera were endemic. An isolation period of 40 days was considered adequate to permit latent cases of disease in the ship's crew to develop and be detected before anyone was allowed to land. The first quarantine of this type is thought to have been imposed in Venice in 1374. In contrast, the imposition of plant quarantine is a relatively recent development. Some of the earliest laws passed were in Germany in 1873 and the United Kingdom in 1877 (after a series of catastrophic pest and disease epidemics in Europe, particularly of grape), and in Indonesia in 1877 to prevent the introduction of coffee rust from Sri Lanka. In the United States, Australia, New Zealand, and many other countries, the first plant quarantine laws were enacted only in the early part of this century. However, in the past, the geographic isolation of Australia and New Zealand has provided a natural barrier to the entry of pests and diseases, while the duration of sea travel produced an enforced period of quarantine on goods, people, and livestock. Both countries are also similar in that agriculture and forestry make a significant contribution to the national economy, and most of the plants that form the basis of these industries are exotic. Freedom from major pests and diseases which affect these plants in other countries is a prerequisite for access to many economically important markets. It also minimises costs of production for local industries and thus improves their competitive position. Effective quarantine is therefore essential to both the trading advantages and production methods of agriculture and forestry in these countries. As well, it is needed to protect the native flora and fauna which, because of the past isolation, are particularly unprepared to combat or compete with exotic organisms. Pressure on the Australian and New Zealand quarantine systems for change to accommodate new situations is greater now than ever before. Natural defences are seen as being eroded by the ever-increasing volume and speed of people and cargo traffic. At the same time, the Governments of both countries are embarked on a course of economic "belt-tightening" resulting in demands for Government agencies, including those responsible for quarantine, to be more efficient and more accountable, and to reduce expenditure and staff levels. Internationally, there is a trend towards trade liberalisation which places an onus on trading nations to justify quarantine decisions which either actually or potentially act as barriers to international trade. 310 New Zealand Journal of Forestry Science 19(2/3) Industry demands for the importation of new genetic material to maintain and improve efficiency of crop production and competitiveness, and the advent of new technologies for treating or testing quarantinable items, also require constant review. POLICY AND PRINCIPLES These many pressures have led both countries to critically examine their quarantine system and to endeavour to set out clear policy guidelines for the future. Australian quarantine policy, as outlined by the Australian Ministry for Resources (1988), is "to aid safe, efficient production in Australia's plant and animal industries, and the conservation of its flora and fauna, in order to contribute to national economic and social welfare". The principles guiding interpretation and implementation of this policy are that it must: "• allow the most rapid and free entry possible of plants, animals and their products, including genetic material, consistent with safety to agriculture and the environment; • adopt conservative responses to risk if available scientific or economic information is not adequate to assess the risk to agriculture or the environment, while seeking and encouraging the provision of such information through the application of further research, technology and biological surveys; and • strenuously pursue technological opportunities to facilitate the greatest possible fulfilment of agricultural quarantine policy." New Zealand's proposed plant quarantine policy (Mohamed et al 1988) is to: "Exclude potentially harmful pests, pathogens and plants from entering New Zealand by any other than natural means". The rationale for this policy is based on market access for New Zealand's produce, maintenance of economic production costs for its plant industries, protection of the ecosystem, and trade facilitation. The stated underlying principle is "that New Zealand adopts a policy of managed risk whereby acceptable risk levels are calculated and plant products are only allowed to enter under conditions that minimise the risk of entry of potentially harmful pests, pathogens and weeds". Specific isues relating to the practical application of such policy are discussed below. Risk Assessment Risk assessment has always been central to plant quarantine practice. Since the introduction of plant quarantine regulations in 1909, Australia has witnessed extremes in their application from the almost non-existent in the war years to the so-called "no risk" policy (i.e., total exclusion) which prevailed from the 1950s to the mid 1970s. This latter policy is referred to in the New Zealand report (Mohamed et al 1988) as the "fortress concept". Both countries reject such policies and espouse a "managed risk" approach with emphasis on conservatism when there is inadequate information available to determine risk. A more systematic and structured approach to risk Wylie — Plant quarantine policy in Australia and New Zealand 311 assessment is to be adopted with bio-economic analysis (i.e., categorisation of risk on the basis of biological and socio-economic criteria) as its cornerstone. Few would argue with the principle underlying this approach, that quarantine decision-making should become more objective, consistent, and informed. However, many people, particularly biologists, have expressed their reservations about the manner in which "acceptable risk" may be calculated and applied in practice. With forestry interests, there are three main areas of concern: (1) the disproportionate impact the introduction of exotic pests and pathogens may have on forests and forest products; (2) the special difficulties of early detection and control of such organisms; and (3) the paucity of data on which to base risk assessment. Disproportionate impact
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